1

ADC 279 

Automated Downgrade for Priority Abuse and Reporting Procedures 

1. ORIGINATOR: 

a. Service/Agency: General Services Administration, Federal Acquisition Service, 

General Supplies and Services

2. FUNCTIONAL AREA:

a. Primary: Supply

b. Secondary: Distribution/Transportation 

3. REFERENCE: DLMSO memorandum dated June 1, 2000, subject: Approved DLMS 

Change 9B, Automatic Downgrading Based upon Validation of Force or Activity Designator 

(F/AD) I Activities. This change activated automatic downgrading of the requisition Priority 

Designator (PD) based upon above DAAS identification of improper PD 04 and 11 requisitions 

and Security Assistance (SA) PD 01s. The downgrade logic employed by DAAS maintains the 

requisitioner’s original Urgency of Need Designator (UND) within the original Issue Priority 

Group (IPG). The downgraded PD equates to F/AD III. ADC 9A had previously established an 

automated process to validate F/AD I requisitions using a table of authorized activity DoDAACs 

maintained at DAASC, but did not include automatic downgrading. Requisitions reflecting 

unauthorized use of associated priority designators (PDs) are output to a report for Component 

review. 

4. REQUESTED CHANGE: 

a. Description of Change:

(1) This change establishes procedures for GSA compliance with MILSTRIP business 

rules for requisition priority validation for F/AD I activities on requisitions submitted directly to 

GSA for purchase of GSA-managed items as specified below. Yellow highlights identify 

updates since proposal staffing. 

(2) This change removes the current PD 01 exclusion from automatic downgrading for 

selected requisitions which do not identify authorized DoDAACs, and are originated via internet 

using GSA Advantage/Global or DoD EMALL. Pending development of procedures for 

identifying the F/AD I authorized units within the requisition, AF requisitions with Priority 

Designator (PD) 01 will be excluded from these expanded edits. Discussions with the AF are 

underway and this exclusion is considered temporary. 

(3) This change also inserts the original (downgraded) PD in the DLMS Supply Status 

with BK status to clarify the specific change associated with the multipurpose BK status. 

b. Procedures: 

(1) Joint Staff. The Joint Staff will provide to GSA identification of authorized 

DoDAACs to be excluded from priority designator validation. Joint Staff updates to the 
2

authorized list will be simultaneous with notification provided to DAASC under current 

procedures. 

(2) GSA. GSA will systematically edit all MILSTRIP requisitions submitted directly 

to GSA outside the standard DAASC requisition flow. GSA will validate the use of PD 01, 04, 

and 11 against the authorized F/AD I activities list. The requisition will be matched against the 

authorized DoDAAC List using the first six characters of the document number (rp 30-43) and 

the supplemental address field (rp 45-50) for Document Identifiers A0_, AM_, AT_, A3_, A4_, 

and APR. 

(a) PD 01 requisitions which are unmatched to the Authorized DoDAAC List will be 

reported to DAASC and downgraded to PD 03 for further processing with one exception: 

1 AF customers (identified by Service Code F in the first position of the 

document number) requisitioning with PD01 will not be downgraded automatically. If not 

downgraded, GSA will report to DAASC as suspected abuse and allow to process as PD 01. 

This exception for the AF is an interim waiver pending better methodology for identification of 

the F/AD I authorized activity on AF requisitions. 

2 AF customers unmatched to the Authorized DoDAAC List may be 

contacted for verification of the requested priority at the discretion of the GSA. 

(b) All PD 04 requisitions which are unmatched to the Authorized DoDAAC List 

will be reported to DAASC and downgraded to PD 06 for further processing. 

(c) All PD 11 requisitions which are unmatched to the Authorized DoDAAC List 

will be reported to DAASC and downgraded to PD 13 for further processing. 

(d) GSA will report downgrading action to DAASC on the DIC CHA/CH1 

transaction using rp 78 as 'D' to indicate downgrade and rp 79-80 to report the original PD. In 

the case of PD 01 suspected abuse, if downgrading action is not approved under this proposal, 

both the PD in rp 60-61 and rp 79-80 would contain 01 on the DIC CHA/1 transaction. This 

action will allow DAASC to merge GSA priority abuse data into the Unauthorized Priority 

Designator Assignment Report on a monthly basis as described in DoD 4000.25-1-M, 

appendix 1.34. 

(3) DAAS. DAAS will implement automatic downgrading for PD 01 validation for 

selected DoD EMALL-prepared requisitions. The automatic downgrade applies to both standard 

MILSTRIP for interfund payment, and those requisitions identifying impact card payment 

method. There will be two exception categories for DoD EMALL PD 01 which will not be 

subject to automatic downgrading: 

(a) PD 01 requisitions created within the DoD EMALL MILSTRIP Order Entry 

Program (MOES) will not be downgraded. This will allow input by the DLA Customer 

Interaction Center (call center) supporting urgent/high priority requirements to be processed 

without downgrading as an interim waiver pending better methodology to identify authorized 

F/AD activities. 

(b) PD 01 AF requisitions created within EMALL will not be downgraded at this 

time (waiver as described above for GSA). 

(4) DLMS. As a DLMS enhancement, DAAS will provide the original (downgraded) 

PD on the BK status resulting from DAAS downgrade action (this change is not associated with 
3

the GSA downgrade since those will be forwarded by DAAS as MILS transactions). Because 

the BK status is multipurpose, this change will provide for easy identification of the specific data 

content which was modified during DAAS processing. This change may be implemented 

separately. 

c. Alternatives: Downgrade all PD 01 not matched to the Authorized List. 

5. REASON FOR CHANGE: 

a. GSA receives PD 01, 04, and 11 level requisitions directly from ordering sources outside 

normal DAASC processing. GSA needs to validate these requisitions to ensure they are from 

F/AD I activities. Any requisition not found on the F/AD I list would need to be reported to the 

appropriate Component/Agency, via the Unauthorized Priority Designator Assignment Report, 

on a monthly basis as described in DoD 4000.25-1-M, appendix 1.34. 

b. PD 01 Downgrade: Internet ordering does not have the same controls as internal 

Service systems to filter out priority abuse. This lack of control, combined with untrained 

ordering personnel using internet ordering, results in a misdirection of resources which may 

negatively impact the warfighter and creates a drain on supply sources. 

Staffing Note: In order to evaluate the extent of suspected priority abuse on requisitions 

submitted via DoD EMALL, a DAASC-provided statistical report is shown at Enclosure 2, with 

a summary below. The totals for January 1, 2007, through November 30, 2007, of requisitions 

(rp1-2 = A0,A3,A4,AM,AT (with a duplicate check to prevent counting the same document 

number more than once), by month and by grand total of all Priority 01 (rp60-61 = 01), and 

RIC-TO = DLA (S9C, S9E, S9G, S9I, S9M, S9T and SMS) for each of the communications 

routing identifiers (CommRIs) used by DoD EMALL, are shown here. The CommRIs identify 

the three communications paths (and ordering process) used for DoD EMALL requisitions: 1) is 

standard ordering process resulting in A0_ transactions; 2) is direct key entry using the 

MILSTRIP Order Entry System (MOES); and, 3) is standard ordering process resulting in 

DLMS-formatted requisitions sent to DLA EBS. 

 Total-01 Total Not On List % 01 Abused 

1) RUQAHNQ DLA HQ /EMALL 544 447 82% 

2) RUQAARA EMALL (MOES) 1766 1143 65% 

3) RUQABXC EMALL X12 6933 6661 96%

 9243 825 89% 

The enclosure report is the spreadsheet by month and grand total for all rp 60-61 = 01 for each 

CommRI, with the second spreadsheet the total by month and grand total for each CommRI, to 

show the subset that match the Downgrade DoDAAC and would be allowed to send rp 60-61 as 

01. DAASC subtracted the total of matches from the Total-01 to get the "Total Not on List" 

shown above and to calculate the percentage. 
4

6. ADVANTAGES AND DISADVANTAGES: 

a. Advantages:

(1) This change would significantly reduce the Time Definite Delivery times for true 

PD 01, 04, and 11 requisitions, by allowing GSA to identify requisitions that require air or 

expedited service, thus reducing the costs associated with these types of requisitions. 

(2) ADC 9, Validation of Force or Activity Designator (F/AD) I Activities, June 1, 

1998, states: “F/AD I is reserved for the highest national priorities, and the Chairman, Joint 

Chiefs of Staff, is responsible for recommending and validating all F/AD I assignments. The 

Joint Staff audit F/AD I usage on an annual basis to ensure continued validity of those 

assignments, and require the Services to validate F/AD I usage by activity, based on the 

requisitioning data captured over the review period. The audits continue to reveal unauthorized 

use of F/AD I priorities. Unauthorized use of F/AD I allocates potentially scarce resources to 

activities that would otherwise have a lesser priority. Unfortunately, little has changed since 

Mr. Trepal, Office of the Secretary of Defense, wrote on January 18,1999, “The DoD/IG's report 

on inter-Service requisitioning equity, and the resulting efforts that we have made to validate 

FAD I usage through DAAS, still support the conclusion that abuse of FAD I is not uncommon, 

and that the penalties for such abuse are somewhere between minimal and nonexistent.” Under 

this change, downgrading of all unauthorized use of PD 01 attributed to DoD EMALL and GSA 

web ordering customers will finally, and substantially, reduce intentional and unintentional abuse 

of the priority system. 

b. Disadvantages: Unique rules for AF and EMALL MOES complicate programming. 

7. IMPACT: 

a. Data Content/Procedures: Revised format for CHA/CH1 as stated above. 

Comparable mapping within the DLMS is provided for future use, and supplements initial 

mapping of the CHA/CH1 to the DLMS 511R under Approved DLMS Change 86, Revision to 

DLMS Supplement 511R to Transmit Requisition Image Transactions.

b. GSA would be required to report all unauthorized PD 01 requisitions, and to 

report/downgrade any unauthorized non-AF PD 01, PD 04, and PD 11 requisitions as described. 

c. Publication(s): 

(a) Revise DoD 4000.25-1-M to include new subparagraph AP2.14.4.3, and 

renumber subsequent paragraphs. Refer to Enclosure 1. A comparable change will be made to 

the DLMS manual. 

(b) Revise DoD 4000.25-1-M, Appendix 2.16, Status Codes, and the DLMS 

dictionary to update the definition of Status Code BK as follows: 
5

BK Modified. 

(1) Requisition data elements have been modified as requested. Examine data fields in this 

status document for current requisition data. 

(2) Used by DAASC on DI AE9 and by GSA on DI AE_ to advise that the requisition 

contained a requisition priority for which the activity was not authorized. The requisition 

priority has been downgraded as shown and the requisition forwarded for processing. 

(3) Also used by DAASC on DI AE9 to advise that the requisition contained an 

invalid/expired OSD/CJCS Category D Project code. The project code has been blanked out 

and the requisition forwarded for processing. 

(4) Used by DAASC on DI AE9, or by supply source, to advise the customer that the 

requisition priority designator and/or RDD data fields contained invalid or incompatible data. 

Customer entry has been modified or blanked out and the requisition forwarded for processing.

(5) Used by DAASC on DI AE9, or by the supply source, to advise that submitter’s fund code 

has been replaced by Fund Code XP requiring noninterfund billing. 

(c) Corresponding update will be made to the DLMS manual. 

(d) Update the DLMS 511R as follows for future use in DLMS environment: 

# Location Revision Reason for Change 

1 DLMS 

Introductory 

note

Add ADC 279 to DLMS introductory note. 

-- ADC 279, Automated Downgrade for Priority Abuse and 

Reporting Procedures (Supply/MILSTRIP)

To identify changes in 

the DS.

2 2/LQ02/140 Add new data element and corresponding DLMS note (qualifier 

ALP): 

79 Priority Designator Code 

Recommend using in all requisitions. 

ALP Alteration Lookup 

DLMS Note: Use for the second occurrence of the Priority 

Designator (PD) on GSA transmission of a requisition image 

transaction to DAAS, when identifying unauthorized use of the 

PD. The second occurrence will be the original (higher) PD as 

assigned by the customer. When used, the PD (qualifier 79) must 

be present. An ANSI data maintenance request has been prepared 

to establish a new data element 1270 code qualifier assignment for 

Submitter’s Priority Designator (Downgraded). Implementation 

pending. (Refer to ADC 279) 

Allows for 

communication of the 

original PD to DAAS for 

use in generating reports. 
6

 (e) Update the DLMS 870S as follows: 

# Location Revision Reason for Change 

1 DLMS 

Introductory 

not.e

Add ADC 279 to DLMS introductory note. 

-- ADC 279, Automated Downgrade for Priority Abuse and 

Reporting Procedures (Supply/MILSTRIP)

To identify changes in 

the DS.

2 2/LQ02/145 Add new data element and corresponding DLMS note (qualifier 

ALP): 

79 Priority Designator Code 

Recommend using in all requisitions. 

ALP Alteration Lookup 

DLMS Note: Use for the second occurrence of the Priority 

Designator (PD) by DAAS/GSA when providing BK status 

identifying unauthorized use of the PD. The second occurrence 

will be the original (higher) PD as assigned by the customer. 

When used, the PD (qualifier 79) must be present identifying the 

actual priority used to process the requisition. An ANSI data 

maintenance request has been prepared to establish a new data 

element 1270 code qualifier assignment for Submitter’s Priority 

Designator (Downgraded). This is an authorized DLMS 

enhancement. (Refer to ADC 279) 

Allows for 

communication of the 

original PD by DAAS to 

DLMS-capable 

customers. This will 

clarify the specific use of 

the BK qualifier which 

has multiple meanings 

and may be difficult to 

interpret. 

Note: This aspect of the 

change may have a 

delayed implementation 

depending upon DAASC 

workload. GSA may 

also provide on status 

when funding becomes 

available to adopt 

DLMS and DLMS 

enhancements. 
1 Enclosure 1 

DoD 4000.25-1-M 

(DRAFT Reissue 2007) 

AP2.14. APPENDIX 2.14

PRIORITY DESIGNATORS, STANDARD AND 

REQUIRED DELIVERY DATES

(relevant paragraphs extracted below)

AP2.14.4. Purpose. This section describes the assignment process for determining the 

appropriate PD based on the assigned F/AD, and the validation process for activities that assign 

and use F/AD I inappropriately. 

AP2.14.4.1. Derivation of Priority Designators. The requisitioning activity determines the 

appropriate PD to enter in the requisition based on the assigned F/AD, and the UND determined 

by the requisitioning activity. Table 1 indicates the appropriate Arabic number PD derived from 

a combination of a given Roman numeral F/AD with one of the alphabetical UNDs. It should be 

noted that each force or activity normally can choose from only three priority designators. 

Table 1

DERIVATION OF PRIORITY DESIGNATORS

(Relating F/AD to UND)

FORCE OR

ACTIVITY DESIGNATOR

URGENCY OF NEED

 A B C

I 01 04 11 

II 02 05 12 

III 03 06 13 

IV 07 09 14 

V 08 10 15 
2

AP2.14.4.2. Validation of F/AD I Activities. By direction of the OSD, the DAASC (J-6D) will 

validate F/AD I usage through the requisitioning process. The DAASC will maintain an edit 

table consisting of activities authorized to use F/AD I. To preserve accuracy and timely update, 

the JCS will forward to DAASC and GSA all OSD-approved assignments of F/AD I 

immediately upon approval. Telephonic or electronic communication, to include on-line update, 

with the DAASC and GSA is authorized for time sensitive updates; however, formal 

documentation shall be forwarded to DAASC and GSA to support inclusion of all F/AD I 

authorized activities. In order to maintain unclassified communication, JCS contact points are 

advised to identify authorized activities by DoDAAC only (no clear-text activity names), and 

make no reference to the associated F/AD. DAASC will edit PD 01, 04, and 11 requisitions (DIs 

A0_, AM_, AT_, A3_, A4_, and APR) to ensure that F/AD I requisitions identify an authorized 

activity in the document number (rp 30-43), or supplemental address field (rp 45-50). DAASC 

will identify PD 01 requisitions failing this edit for suspected abuse, and subsequent 

investigation without interruption of normal requisition processing. DAASC will use table 2, 

below, to downgrade PD 04 and 11 requisitions failing this edit. DAASC will report 

downgrading action back to the requisitioner in an AE9 transaction with BK status, and will 

forward the modified requisition for processing. By agreement, all suspected F/AD I abuses 

found in US Coast Guard requisitions (rp 30 equal to Z) identified under above validation 

process, will be automatically downgraded. In addition, DAASC will assess the validity of 

transactions which bypass the F/AD I validation process as a result of alternative requisition 

submission, such as, Defense Supply Export System (DESEX) input, using the requisition image 

transaction (DIs CHI, CHA, BE9, and B99). Suspected abuses uncovered during the above edit 

process (to include those transactions downgraded by DAASC) will be output to the 

Unauthorized Priority Designator Assignment Report (Appendix AP1.34). 

AP2.14.4.3. General Services Administration Requisitions. MILSTRIP requisitions submitted 

directly to GSA for GSA managed items will be reviewed for appropriate PD assignment prior 

to further processing. Any requisitions with PD 04 or PD 11 will be downgraded in 

accordance with table 2. PD 01 requisitions may be downgraded with the exception of AF 

(Service Code F) requisitions1. GSA will notify the requisitioner of the downgrade by 

generating a Supply Status, DIC AE8 with BK Status, and route to DAASC for distribution to 

the correct recipient(s) depending on the Media/Status and Distribution Code in the AE8. The 

modified requisition will be forwarded within GSA for processing based on the new PD. GSA 

will report downgrading action to DAASC on the DIC CHA/CH1 transaction using rp 78 as 

'D' to indicate downgrade and rp 79-80 to report the original PD. In the case of PD 01 

suspected abuse, both the PD in rp 60-61 and rp 79-80 would contain 01 on the DIC CHA/1 

transaction. This action will allow DAASC to merge GSA priority abuse data into the 

Unauthorized Priority Designator Assignment Report on a monthly basis as described in DoD 

4000.25-1-M, appendix 1.34. NOTE: MILSTRIP requisitions submitted directly to GSA for 

GSA managed items will not be revalidated by DAASC against the established edit table. 

AP2.14.4.4 DoD EMALL Requisitions. DAAS will apply automatic downgrading to DoD 

EMALL prepared requisitions unmatched to the Authorized DoDAAC List with the exception 

of AF PD 01 and MILSTRIP Order Entry Program (MOES) PD 01. 

 

1

 Refer to ADC 279, Automated Downgrade for Priority Abuse and Reporting Procedures. The exception 

for the AF is an interim waiver pending better methodology for identification of the F/AD I authorized 

activity in AF requisitions. 
3

AP2.14.4.5. Security Assistance Requisitions. All Security Assistance requisitions (identified 

by Service Code B, D, K, P, or T in rp 30/45), will be reviewed for appropriate PD assignment 

by the ILCO prior to release. Specific procedures to accomplish this may be deferred until 

implementation of the DSAMS. The Security Assistance requisitions will not be revalidated by 

DAASC against the established edit table. However, any Security Assistance requisitions with 

PD 01, 04, or 11 will be downgraded in accordance with table 2. DAASC will report 

downgrading action to the applicable ILCO in an AE9 transaction with BK status, and the 

modified requisition will be forwarded for processing. Suspected abuse will be output to the 

Unauthorized Priority Designator Report under the appropriate S/A heading with no activity 

name. 

Table 2

DAASC TABLE FOR AUTOMATIC DOWNGRADING OF 

REQUISITION PRIORITY DESIGNATOR2

If PD is: then DAASC will to change to 

01 

(USCG, USAF JM accounts, and SA only) 

03 

04 06 

11 13 

AP2.14.4.5. Participating Service/Agency Points of Contact and Responsibilities. DoD 4140.1-

R (DoD Materiel Management Regulation), appendix 9, requires DoD Components to designate 

a single office of primary responsibility to act as focal point for UMMIPS matters. To provide 

clear visibility of such points of contact, the JCS, the Military Services, the Defense Logistics 

Agency (if needed), and the General Services Administration, will provide contact information to 

DLMSO for publication in this appendix. Contact information shall include office name/symbol 

and communications numbers. Primary and alternate information should be included. DoD 

Component responsibilities for monitoring FA/D assignments and conducting annual reviews are 

delineated in DoD 4140.1-R. 

AP2.14.4.6. Service/Agency Points of Contact are listed n the DLMSO Web 

site at http://www.dla.mil/j-6/dlmso/eLibrary/Restricted/SvcPointsPOC/default.asp.

 

2

 Effective November 3, 2003, DAASC implemented logic change to allow requisitions with DODAAC N00421 in 

rp 30-35, Document Number Serial Numbers FQ and GQ (in rp 40-41) and PDs 04 and 11 to pass through DAASC 

processing without being downgraded. Requisitions with DODAAC N00421, document number serial numbers 

beginning with FQ and GQ for PDs 01, 04, and 11 will not be included in the monthly Priority Designator Reports. 
Enclosure 2: Worksheet 1: All PD 01 EMALL Requisitions

MONYY COMMRI Count RUQAARA RUQABXC RUQAHNQ

JAN07 RUQAARA 143 1,766 6,933 544

JAN07 RUQABXC 402

JAN07 RUQAHNQ 110

655 Grand Total 9,243

FEB07 RUQAARA 183

FEB07 RUQABXC 539

FEB07 RUQAHNQ 133

855

MAR07 RUQAARA 246

MAR07 RUQABXC 460

MAR07 RUQAHNQ 191

897

APR07 RUQAARA 174

APR07 RUQABXC 502

APR07 RUQAHNQ 100

776

MAY07 RUQAARA 160

MAY07 RUQABXC 800

MAY07 RUQAHNQ 4

964

JUN07 RUQAARA 156

JUN07 RUQABXC 570

JUN07 RUQAHNQ 1

727

JUL07 RUQAARA 138

JUL07 RUQABXC 689

827

AUG07 RUQAARA 181

AUG07 RUQABXC 1,246

AUG07 RUQAHNQ 3

1,430

SEP07 RUQAARA 115

SEP07 RUQABXC 775

890

OCT07 RUQAARA 202

OCT07 RUQABXC 417

OCT07 RUQAHNQ 2

621
Enclosure 3: Worksheet 2: Matched to Authorized DoDAAC List

MONYY OCOMMRI COUNT RUQAARA RUQABXC RUQAHNQ

Jan-07 RUQAARA 43 623 272 97

Jan-07 RUQABXC 8

Jan-07 RUQAHNQ 29

80 Grand Total 992

Feb-07 RUQAARA 38

Feb-07 RUQABXC 18

Feb-07 RUQAHNQ 20

76

Mar-07 RUQAARA 92

Mar-07 RUQABXC 16

Mar-07 RUQAHNQ 15

123

Apr-07 RUQAARA 47

Apr-07 RUQABXC 5

Apr-07 RUQAHNQ 33

85

May-07 RUQAARA 48

May-07 RUQABXC 9

57

Jun-07 RUQAARA 41

Jun-07 RUQABXC 28

69

Jul-07 RUQAARA 75

Jul-07 RUQABXC 58

133

Aug-07 RUQAARA 76

Aug-07 RUQABXC 70

146

Sep-07 RUQAARA 55

Sep-07 RUQABXC 20

75

Oct-07 RUQAARA 64

Oct-07 RUQABXC 20

84

Nov-07 RUQAARA 44

Nov-07 RUQABXC 20

64